d. adam lazar (sbn 237485) adam keats (sbn …...d. adam lazar (sbn 237485) adam keats (sbn 191157)...
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Verified Petition for Writ of Mandate
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D. Adam Lazar (SBN 237485) Adam Keats (SBN 191157) CENTER FOR BIOLOGICAL DIVERSITY 351 California St., Suite 600 San Francisco, California 94104 Telephone: 415-436-9682 Facsimile: 415-436-9683 [email protected] [email protected] Michael Robinson-Dorn (SBN 159507) UC IRVINE SCHOOL OF LAW ENVIRONMENTAL LAW CLINIC 401 E. Peltason Dr., Suite 4500-B Irvine, California 92697 Telephone: 949-824-1043 [email protected] Attorneys for Petitioners
SUPERIOR COURT OF THE STATE OF CALIFORNIA
COUNTY OF SAN BERNARDINO
CENTER FOR BIOLOGICAL DIVERSITY, NATIONAL PARKS CONSERVATION ASSOCIATION, SAN BERNARDINO VALLEY AUDUBON SOCIETY AND SIERRA CLUB, SAN GORGONIO CHAPTER Petitioners, vs. COUNTY OF SAN BERNARDINO, BOARD OF SUPERVISORS OF COUNTY OF SAN BERNARDINO, SANTA MARGARITA WATER DISTRICT, AND SANTA MARGARITA WATER DISTRICT BOARD OF DIRECTORS,
Respondents;
CADIZ, INC., ARIZONA AND CALIFORNIA RAILWAY COMPANY, CALIFORNIA WATER SERVICES COMPANY, FENNER VALLEY MUTUAL WATER COMPANY, GOLDEN STATE WATER COMPANY, JURUPA COMMUNITY SERVICES DISTRICT, SUBURBAN WATER SYSTEMS, THREE VALLEYS MUNICIPAL WATER DISTRICT AND DOES 1-40. Real Parties in Interest.
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Case No. VERIFIED PETITION FOR WRIT OF MANDATE (Cal. Code Civ. Proc. § 1094.5; Cal. Pub. Resources Code § 21000 et seq. (California Environmental Quality Act))
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Verified Petition for Writ of Mandate
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INTRODUCTION
1. This action challenges the July 31, 2012 approval of the Cadiz Valley Water
Storage and Conservation Project (the “Project”) by the Santa Margarita Water District
(“SMWD”), through its Board of Directors, as recorded in a Notice of Determination and
SMWD’s certification of the Environmental Impact Report (“EIR”) for the Project.
2. Under the guise of a self-proclaimed "conservation” project, the Project would
mine millions of gallons of water a year—for 50 years—from a desert aquifer system in the
Mojave Desert. As proposed and approved, the Project would drain the aquifers at a rate far in
excess of the rate of natural recharge, with significant environmental harm. Returning the
aquifers to their current levels following the end of the Project may take centuries.
3. Petitioners, together with various governmental agencies at the state and federal
level, Native American Tribes, and concerned members of the public documented numerous
violations of CEQA during the administrative proceedings leading up to the certification of the
EIR and SMWD’s approval of the Project. Included among these violations is SWMD’s
usurpation of San Bernardino County’s (the “County”) proper role as lead agency for the
Project under the California Environmental Quality Act (“CEQA”), and SWMD’s failure to
properly prepare and certify a legally adequate EIR for the Project.
4. As described below, SMWD’s certification of the Project violated the California
Environmental Quality Act (“CEQA”), Cal. Public Resources Code § 21000 et seq., and the
CEQA Guidelines, title 14 California Code of Regulations, § 15000 et seq. (“CEQA
Guidelines.)”
5. This action also challenges the County of San Bernardino and its Board of
Supervisors for failure to act as lead agency for the Cadiz project under CEQA.
6. Because SMWD and San Bernardino County failed to comply with CEQA,
Petitioners petition this Court for a writ of mandate under Code of Civ. Proc. §§ 1085 and
1094.5, directing SMWD to vacate and set aside its approval of the Project and EIR
certification. Petitioners also petition for declaratory relief in the form of a finding that the
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Verified Petition for Writ of Mandate
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County of San Bernardino is the proper lead agency for future environmental review of this
project under CEQA.
7. Petitioners’ have no plain, speedy, or adequate remedy in the course of ordinary
law unless this Court grants the requested writ of mandate to require Respondent SWMD to set
aside its certification of the EIR and approval of the project, and declares that San Bernardino
County is the proper lead agency. In the absence of such remedies, Respondents’ decisions
will remain in effect in violation of state law.
JURISDICTION AND VENUE
8. This Court has jurisdiction over this action pursuant to Cal. Code Civ. Proc. §§
1085 and 1094.5 and Pub. Resources Code §§ 21168 and 21168.5. This Court has the
authority to issue a writ of mandate directing SMWD to vacate and set aside its approval of the
Project and certification of the EIR for the Project under Code Civ. Proc. §§ 1085 and 1094.5.
9. Venue for the CEQA actions contained in this Petition properly lies in the San
Bernardino County Superior Court pursuant to Cal. Code Civ. Proc. § 395(a), because
Respondent County of San Bernardino and the Board of Supervisors of San Bernardino County
have their principal place of business in the City of San Bernardino, and additionally pursuant
to § 393(b), because the primary location of both the project and the majority of its associated
impacts is the County of San Bernardino. In addition, Respondents and Real Parties in Interest
reside throughout a four-county region, including San Bernardino County, making no other
location more appropriate or convenient.
PARTIES
10. Petitioner CENTER FOR BIOLOGICAL DIVERSITY (“The Center”) is a non-
profit, public interest organization with over 41,000 members and 280,000 online activists.
The Center has offices in Joshua Tree, Los Angeles, and San Francisco, California, as well as
offices in Arizona, Florida, New Mexico, Oregon, Vermont, and Washington, D.C. The Center
and its members are dedicated to protecting diverse native species and habitats through science,
policy, education, and environmental law. The Center’s members reside and own property
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throughout California as well as those areas served by the State Water Project, and use the
waters and lands affected by the proposed Project, including the Mojave National Preserve, for
recreational, wildlife viewing, scientific, and educational purposes. The Center was one of the
coalition of organizations that submitted timely comments to SMWD in response to the
December 2011 Draft Environmental Impact Report (“DEIR”) for the Project, and has
submitted letters to both Respondents explaining the improper choice of lead agency and
warning of problems and inadequate review of a subsequent contractual agreement (MOU)
between Respondents and Cadiz, Inc. The Center and its members would be directly, adversely
and irreparably harmed by the Project and its components, as described herein, until and unless
this Court provides the relief prayed for in this petition.
11. Petitioner NATIONAL PARKS CONSERVATION ASSOCIATION (“NPCA”)
is a non-profit, membership based advocacy group whose mission is to protect and enhance our
national parks for present and future generations. NPCA has over 100,000 active supporters
and members in California and over 600,000 nationwide. NPCA maintains offices nationwide,
including Joshua Tree and Barstow, California. NPCA, in collaboration with other petitioners
to this action, has actively opposed and provided substantive and timely written and oral
comments on the challenged Project. Many NPCA members live, work and recreate in San
Bernardino County and throughout the areas to be impacted by the Project. NPCA members
use, recreate and enjoy the 1.6 million acre Mojave National Preserve, the third largest national
park unit in the lower forty eight states, including its diversity of wildlife and plants, desert
springs and desert habitat, and visual beauty. The interests of NPCA, its staff and its members
in preserving the Mojave National Preserve and surrounding lands will be harmed by the Cadiz
project unless court action is taken and Petitioners’ requested relief is granted. .
12. Petitioner SAN BERNADINO VALLEY AUDUBON SOCIETY (“SBVAS”) is
a non-profit 501(c)3 organization of good standing. SBVAS is an independent organization
from the National Audubon Society, and maintains its own board, volunteer staff, membership,
policy and fundraising efforts. SBVAS is committed to protecting endangered species and
wild places, and in particular avian species, their habitats, and their sources of food. SBVAS
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has worked to protect the natural resources of California; the organization’s mission is to
educate the public as to the importance of the natural environment and to preserve habitat for
birds and other wildlife. SBVAS is specifically focused on promoting and protecting these
values in the Inland Empire region, which includes the Cadiz project site, its surrounding
habitat and the Mojave National Preserve. SBVAS was part of the coalition of public interest
organizations which provided timely comments in response to the December 2011 DEIR for
the proposed Project. The interests of SBVAS, its staff and its members in preserving the
desert habitat and wildlife will be harmed by the Cadiz project unless court action is taken and
Petitioners’ requested relief is granted.
13. Petitioner SIERRA CLUB, SAN GORGONIO CHAPTER (“the Club”) is a
chapter of The Sierra Club, a national non-profit membership organization committed to
protecting endangered species and wild places. The San Gorgonio Chapter of the Sierra Club
is based in San Bernardino, California. From its inception and for over a century, the Sierra
Club has worked to protect the natural resources of California, and has been a long-time
advocate for protection of the public wilderness lands surrounding the Cadiz project. The Club
has led community opposition to the Project since the project was originally proposed over a
decade ago, and continues to work with local communities in opposition. The Club was one of
the coalition of public interest organizations which submitted timely comments in response to
the current Project’s December 2011 DEIR, and members attended and spoke in opposition to
the project at SMWD’s July 2012 board meetings where the Cadiz FEIR was considered by the
SMWD’s board for approval. The Club, its staff and its members would be directly, adversely
and irreparably harmed by the Project, as described herein, until and unless this Court provides
the relief prayed for in this petition.
14. Respondent SANTA MARGARITA WATER DISTRICT (“SMWD”) is a water
district organized and existing under the California Water District Law, Cal. Water Code §§
34000 et seq., with its principle place of business in Rancho Santa Margarita, California,
providing retail water service to a mostly residential area of southern Orange County, located
over two hundred miles away from the Cadiz project site. SMWD acted as the lead agency for
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environmental review of the Cadiz project and Respondent SMWD BOARD OF DIRECTORS
approved the EIR in that capacity, as indicated in the Project’s July 31, 2012 Notice of
Determination.
15. Respondent COUNTY OF SAN BERNARDINO (the “County”) is a political
and geographical subdivision of the State of California with its principal offices located in the
town of San Bernardino, California. Respondent SAN BERNARDINO COUNTY BOARD
OF SUPERVISORS constitutes the elected decision-making body of the County empowered to
approve or disapprove projects under CEQA, and which entered into agreements with SMWD
and Cadiz regarding the County’s role in the Project. The Project’s pumps and the majority of
the Project’s anticipated environmental impacts lie within the County’s boundaries. The
County maintains the authority to permit and regulate the construction and development of the
Project. The EIR for the Cadiz project describes the County as a responsible agency under
CEQA.
16. Real Party in Interest CADIZ, INC. (“Cadiz”) is a company doing business under
the laws of the State of California with its principal place of business in Los Angeles,
California. Petitioners are informed and believe that (1) Cadiz is a Delaware corporation doing
business in California at all times relevant to this Petition, and (2) through its subsidiary Cadiz
Real Estate LLC, Cadiz Inc. owns approximately 34,000 contiguous acres of land in the Cadiz
and Fenner Valleys (Cadiz Property), upon which most or all of the Project’s pumping and
pumping-related infrastructure will be constructed.
17. Real Party in Interest ARIZONA & CALIFORNIA RAILROAD COMPANY
(“ACRC”) is a company existing as a limited liability partnership with its principle place of
business in Parker, Arizona. ACRC is a subsidiary of RailAmerica, a corporation listed on the
New York Stock Exchange with its corporate headquarters in Jacksonville, Florida.
Petitioners are informed and believe that ACRC is the owner and operator of the shortline
railroad that runs from Cadiz, California to Parker, Arizona, and that Cadiz has entered into an
agreement with the ACRC to utilize a portion of its right-of-way (“ROW”) for placement of
necessary infrastructure for the proposed Project.
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18. Real Party in Interest CALIFORNIA WATER SERVICES COMPANY is a
subsidiary of the California Water Services Group, a publicly-traded Delaware corporation.
CWS’ principal place of business is San Jose, California. California Water Services Company
was included as a participant in the Project EIR and is listed as a recipient of Project water in
the July 31, 2012 Notice of Determination.
19. Real Party in Interest FENNER VALLEY MUTUAL WATER COMPANY is a
California mutual water company describing itself as a non-profit entity, existing under the
laws of the State of California with its principal place of business in Los Angeles, California.
Petitioners are informed and believe that Fenner Valley Mutual Water Company was created
by Cadiz to distribute Project water and will be solely comprised of public water systems that
will own shares commensurate with their rights to receive water from the Project.
20. Real Party in Interest GOLDEN STATE WATER COMPANY (“Golden State”)
is a water company with its principal place of business in San Dimas, California. Golden State
Water Company is a wholly-owned subsidiary of American States Water Company, a publicly-
traded Delaware corporation also based in San Dimas. Golden State Water Company is
included as a Project Participant in the EIR, and is listed as a recipient of Project water in the
July 31, 2012 Notice of Determination.
21. Real Party in Interest JURUPA COMMUNITY SERVICES DISTRICT is a
public agency known as a Special District organized and existing under the California
Community Services District Law, Cal. Government Code §§ 61000 et seq., with its principal
place of business in Jurupa Valley, California. Jurupa Community Services District is
responsible for providing potable water, sewer and streetlights to over 101,000 people located
throughout 48 square miles in the Jurupa area of Riverside County. Jurupa Community
Services District was included as a project participant in the Project DEIR, is listed as a
recipient of Project water in the July 31, 2012 Notice of Determination, and is acting as a
responsible agency for the proposed Project’s environmental review.
22. Real Party in Interest SUBURBAN WATER SYSTEMS is an investor-owned
water utility doing business in the State of California with its principal place of business in
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Covina, California, and is a wholly-owned subsidiary of SouthWest Water Company, a
privately-held corporation based Sugar Land, Texas. Suburban Water Systems was identified
as a project participant in the Environmental Impact Report and is listed as a recipient of
Project water in the July 31, 2012 Notice of Determination.
23. Real Party in Interest THREE VALLEYS MUNICIPAL WATER DISTRICT is
a California Municipal Water District with its principle place of business in Claremont,
California. Petitioners are informed and believe that Three Valleys Municipal Water District is
a beneficiary of approval as listed on the Notice of Determination, was identified as a project
participant in the Project EIR, and is acting as a Responsible Agency for the Project’s
environmental review.
24. Petitioners are currently unaware of the true names and capacities of Does 1
through 20, inclusive, and therefore sue those parties by such fictitious names. Does 1 through
20, inclusive, are government or private entities presently unknown to Petitioners who will
receive Project water, or are otherwise beneficiaries of approval of the Cadiz Project, not listed
in the Project’s July 31, 2012 Notice of Determination. Petitioners will amend this petition to
show the true names and capacities of Does 1 through 20 when such names and capacities
become known.
25. Petitioners are currently unaware of the true names and capacities of Real Parties
in Interest, Does 21 through 40, inclusive. Does 21 through 40, inclusive, are persons or
private entities presently unknown to Petitioners who claim some legal or equitable interest in
the Project that is the subject of this action. Petitioners will amend this petition to show the
true names and capacities of Does 1 through 20 when such names and capacities become
known.
26. Petitioners bring this action as private attorneys general pursuant to Cal. Code
of Civil Procedure § 1021.5, and any other applicable legal theory to enforce important public
rights affecting the public interest.
GENERAL ALLEGATIONS
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27. The Cadiz Valley Water Conservation, Recovery and Storage Project (“Project”)
is a project to mine and export water from alluvial aquifers underlying the Mojave Desert, near
Cadiz, California, and transport Project water to multiple public and private water districts and
corporations in the greater Los Angeles region.
28. The Project was reviewed under CEQA with Santa Margarita Water District
(“SMWD”) acting in the role of lead agency. SMWD’s Notice of Determination was signed
July 31, 2012, and states that the Project will extract an average of 50,000 acre-feet (approx.
16.2 billion gallons) per year over a 50 year period. Physical infrastructure will include a well
field with up to 34 wells, and a 43-mile pipeline to the Colorado River Aqueduct.
29. The Project applicant is Cadiz, Inc. who, through its subsidiary Cadiz Real
Estate, owns the Project site, and will be the primary financial beneficiary. Cadiz has entered
into agreements to sell the Project water to Fenner Valley Mutual Water Company, who will
then re-sell the water to Project participants.
30. The Project also includes “Phase II,” which will consist of spreading basins to
recharge surface water into the groundwater basin and convey stored water back to
Participants.
The Original Project
31. A version of the Project was originally proposed as the “Cadiz Groundwater
Storage and Dry-Year Supply Program” in the late 1990’s, with the Metropolitan Water
District of Southern California (“MWDSC”) acting as lead agency under CEQA, and the
federal Bureau of Land Management acting as lead agency under the National Environmental
Policy Act.
32. The original project emphasized storage of Colorado River water, and only
intended to export water in “dry” years, but was nonetheless supported by applicant-funded
studies claiming the aquifers were naturally provided with 40,000 to 50,000 acre-feet per year
of water for recharge. The executive summary to the original DEIR further stated that the
project could export up to 150,000 acre-feet a year.
33. The original project’s studies of groundwater recharge were strongly disputed by
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multiple expert reports, including two by the United States Geological Survey. Expert
hydrologist Dr. John Bredhoeft, a former 32-year career scientist at the United States
Geological Survey (“USGS”), reviewed the existing studies, and concluded that recharge was a
small fraction of the applicant’s estimates, finding that the most probable range of recharge is
5,000-6,000 acre-feet per year.
34. MWDSC voted to cancel the previous Cadiz project in 2002. The Staff
Recommendation was that “further board action on the project be deferred” due to “uncertainty
over the availability of surplus water;” the “growing realization that significant quantities of
native groundwater may not be available for export;” the “demand for Colorado River water
supply… may reduce our flexibility to store Colorado River water;” “increased capital costs
above the $150 million estimate;” “the money that is planned to be spent on the Cadiz project
may be needed elsewhere to acquire water supplies that are not dependent upon surplus
Colorado River water and the availability of disputed local groundwater supplies;” and
“substantial financial risk.”
San Bernardino County Desert Groundwater Management Ordinance
35. The County of San Bernardino enacted its Desert Groundwater Management
Ordinance in October, 2002, less than two weeks after MWDSC cancelled the original project,
doing so specifically in response to the County’s inability to effectively regulate groundwater
exports, and to adequately monitor and protect against harm to the County’s aquifers.
36. The Desert Groundwater Management Ordinance, San Bernardino County Code
Article 5, § 33.06551 et seq., states that no person or entity shall locate, construct, operate or
maintain a groundwater export and/or storage project in the Cadiz project area absent a permit
issued pursuant to the ordinance, unless the project is exempted by (1) a Groundwater
Management Monitoring and Mitigation Plan (GMMMP), and (2) the County entering into a
Memorandum of Understanding (MOU) with the Applicant. (San Bernardino County Code §
33.06554(a).)
37. The Ordinance emphasizes the “particular importance” of protecting
groundwater in the Project area due to “relative lack of significant natural recharge in those
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areas” and the “lack of regulatory or judicial oversight of the groundwater aquifers.” (San
Bernardino County Code §§ 33.06551 (b)(2) and (3).)
38. The Ordinance prohibits issuing a permit unless the reviewing County authority
concludes that the project’s operation “would not result in exceeding groundwater safe yield of
the relevant aquifers.” (San Bernardino County Code § 33.06554(d)).
39. In 2007, Cadiz submitted a Desert Groundwater Management Permit application
for a project similar to the original project, but without MWDSC as lead agency. The 2007
application also included both storage of Colorado River water and export of water from the
aquifer only in dry or very dry years. The permit application included a statement that any
withdrawal of groundwater would be temporary and had to be replenished by importation of
Colorado River water. The County did not approve the 2007 permit application.
The Current Project
40. The current Cadiz Project was re-born in 2011 with SMWD as the lead agency.
MWDSC, which must still facilitate the transport of water for the Project, was not consulted as
a lead or responsible agency for the new Project’s DEIR, and has not promised to treat or
transport Cadiz water, despite both being necessary for exporting the project’s water.
41. The Project has not undergone review under NEPA.
42. While the original emphasized importing and storing Colorado River water, and
only exporting water in “dry” years, the current Project focuses on groundwater export and
demotes the import and storage of water to a secondary “program” role of the Project, to be
implemented at an undetermined later time.
43. The original project claimed that MWDSC would employ conservation, or water
saving measures, across its system in relation to the Project. The current Project claims that it
“conserves” water by exporting water for consumptive use that would otherwise evaporate
from the dry lakebeds overlying the aquifer. The Project’s alleged “conservation” does not
include a detailed analysis of the end-uses of the water beyond a presumption that it will be
“beneficially used.”
44. The 2011 Project DEIR was accompanied by a Groundwater Management,
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Monitoring and Mitigation Plan (“GMMMP”), which purports to meet the Project’s mitigation
and monitoring requirements, and claims to function to exempt the Project from the San
Bernardino County Desert Groundwater Management Ordinance in conjunction with a
Memorandum of Understanding entered into between Cadiz, SMWD and the County. The
GMMMP has not been approved by the County.
45. Petitioners provided detailed comments on the DEIR, identifying both legal
and scientific inadequacies with the Project, and included two reviews of the Project conducted
by expert hydrologists, detailing the shortcomings in their analysis of water supply. Other
commenters, including MWDSC and the National Parks Service, were also highly critical of
the project and its underlying studies. Petitioners’ comments included, but are not limited to
the following:
a. SMWD is the improper lead agency for the Project, and that the County is the
appropriate lead agency for the project;
b. SMWD failed to identify, include, and consult as required with required
responsible agencies;
c. The stated CEQA objectives for the Project are overly narrow;
d. The stated objectives and description of the Project are misleading;
e. The DEIR failed to adequately analyze the Project’s environmental impacts,
including but not limited to impacts related to biological resources,
threatened and endangered species, air quality and water quality.
f. The DEIR failed to provide substantial evidence in support of its conclusions
regarding the level of significance of the Project’s impacts and the efficacy of
proposed mitigation measures;
g. The DEIR improperly deferred impact analysis and development of
mitigation measures and appropriate thresholds;
h. The DEIR failed to consider a reasonable range of alternatives by, inter alia,
failing to give meaningful consideration to alternatives and rejecting without
adequate evidentiary basis reasonable alternatives that would meet most
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project objectives;
i. The DEIR failed to adequately analyze growth-inducing and cumulative
impacts; and
j. The DEIR was so fundamentally flawed as to preclude meaningful public
review, and should have been revised and recirculated with additional
information.
46. The Memorandum of Understanding referred to in the GMMMP was not
included in the DEIR or approved by SMWD or the County prior to the DEIR’s circulation.
However, in May, 2012, after circulation of the DEIR and the close of the comment period,
Cadiz, the County and SMWD entered into a Memorandum of Understanding (MOU) which,
in conjunction with the GMMMP, purports to exempt the Project from the County’s Desert
Groundwater Management Ordinance.
47. The MOU provided several terms for the Project whose definitions and use were
not fully disclosed or analyzed in the EIR or GMMMP, including “aquifer health,” “overdraft,”
“safe yield,” and “undesirable results.”
48. The MOU also indicated that the County would provide several key variables
necessary to determine safe yield, aquifer health and overdraft. Specifically, the MOU dictates
that the County must designate a minimum groundwater “floor” level and an acceptable “rate
of decline.” However, the MOU, the DEIR and the GMMMP do not include the County’s
findings regarding these variables.
49. The MOU identified San Bernardino County as a responsible agency for the
project and required the County to make a decision on whether to approve the Project within
90 days of SMWD’s certification of the Project EIR.
50. On May 31, 2012, the Center submitted a letter to SMWD and the County
objecting to the approval of the MOU, and identified several elements presented therein which
were inadequately discussed or omitted entirely from the DEIR and GMMMP. The Center, a
Petitioner, requested that the DEIR analyze the additional information contained in the MOU,
and then that the DEIR be re-circulated for public review with the additional information and
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analysis included. This request was repeated by Petitioners and other members of the public
during oral comments at the July 25, 2012 SMWD Board meeting.
51. SMWD did not recirculate the DEIR for review and comment. Instead, SMWD
released the Final Environmental Impact Report (“FEIR”) for public review on July 13, 2012
and scheduled a public hearing to consider approval of the EIR and project on July 25, 2012.
52. The National Park Service requested that SMWD delay approval of the FEIR
until it and other members of the public had sufficient time to review. The Park Service’s
request was not approved.
53. Hours of public comments, the vast majority of which indicated opposition to the
Project, caused the July 25 hearing to continue past midnight, resulting in the meeting being
continued to July 31, 2012. SMWD then approved the FEIR on July 31, 2012, and signed a
Notice of Determination (NOD) approving the Project on the same day. Petitioners are
informed and believe that the SMWD also approved the Project’s adopted findings and a
statement of overriding consideration at the July 31 meeting, as well as a revised GMMMP.
EXHAUSTION OF ADMINISTRATIVE REMEDIES
54. Petitioners have exhausted all administrative remedies by submitting written and
oral comments and testimony on the Project to Respondent requesting compliance with CEQA,
including the completion of full and adequate environmental review. All issues raised in this
Petition were raised before Respondent by Petitioners, other members of the public, or public
agencies prior to approval of the Project.
55. Petitioners have complied with Cal. Public Resources Code § 21167.5 by prior
service of a notice upon Respondents indicating their intent to file this Petition. Proof of
Service of this notification, with the notification, is attached as Exhibit A.
56. Petitioners have elected to prepare the record of proceedings in the above-
captioned proceeding pursuant to Cal. Public Resources Code § 21167.6(b)(2). Proof of
Service of this notification, along with the notification, is attached as Exhibit B.
57. This Petition is timely filed in accordance with Cal. Public Resources Code §
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21167 and CEQA Guidelines § 15112..
FIRST CAUSE OF ACTION
Violation of California Environmental Quality Act (Cal. Public Resources Code § 21000 et seq.)
58. Petitioners hereby incorporate by reference each and every allegation set forth
above, inclusive.
59. The purpose of an EIR is to provide public agencies and the public in general
with detailed information about the effect which a proposed project is likely to have on the
environment. (Pub. Resources Code § 21061.)
60. An EIR must fully disclose and analyze all of the project’s potentially significant
environmental effects. (Pub. Resources Code § 21100(b)(1).)
61. The EIR should be prepared with a sufficient degree of analysis to provide
decision-makers with information which enables them to make a decision which intelligently
takes account of environmental consequences. (CEQA Guidelines § 15151.)
62. CEQA further requires the lead agency to adequately consider mitigation
measures and alternatives to the Project, to adopt all feasible mitigation measures and/or
alternatives, to determine that proposed mitigation measures will or will not be effective in
avoiding or substantially lessening the Project’s significant environmental impacts, and to
make an adequate statement of overriding considerations for those significant environmental
impacts deemed unavoidable. (Pub. Resources Code §§ 21002.1(b), 21100(b)(3); CEQA
Guidelines §§ 15092 and 15093).
63. CEQA contemplates an interactive process of assessment and responsive
modification that must be genuine. The lead agency must be able to substantially change or
disapprove the project through the CEQA review process; using CEQA as a post hoc
justification for a project is not permitted.
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64. For the following reasons, SMWD’s approval of the Cadiz project failed to
comply with CEQA, and was arbitrary and capricious, not supported by the evidence, and not
in accordance with applicable law:
Choice of SMWD as Improper Lead Agency
(Against SMWD and the County)
65. Under CEQA, the lead agency is required to prepare a complete and legally
adequate EIR prior to approving any discretionary project that may have a significant adverse
environmental effect. (Pub. Resources Code §§ 21100(a) and 21150).
66. CEQA defines “lead agency” as “the public agency which has the principal
responsibility for carrying out or approving a project which may have a significant effect on
the environment.” (Cal. Public Resources Code. § 21067.)
67. CEQA defines “local agency” as “any public agency other than a state agency,
board or commission.” (Cal. Public Resources Code § 21062.)
68. When two or more public agencies are involved with a project, “if the project is
to be carried out by a nongovernmental person or entity, the lead agency shall be the public
agency with the greatest responsibility for supervising or approving the project as a whole.”
(CEQA Guidelines § 15051(b).)
69. Cadiz., Inc., the Project applicant, is a publically-traded company. Cadiz has
been responsible for the Project’s financing and permitting, most of the Project pumping will
occur on or near Cadiz property, and Cadiz will be the primary financial beneficiary of the
Project. The Project requires at least one government approval, and qualifies as a Private
Project pursuant to CEQA Guidelines § 15377.
70. The lead agency “will normally be the agency with general governmental
powers, such as a city or county, rather than an agency with a single or limited purpose such as
an air pollution control district or a district which will provide a public service or public utility
to the project.” (CEQA Guidelines § 15051(b)(1).)
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71. The majority of the Project’s impacts, including but not limited to impacts to
water supply, water quality, air quality, and biological resources, will occur at or in the vicinity
of the Cadiz Project site located in eastern San Bernardino County.
72. The Project falls under the jurisdiction of the San Bernardino County Desert
Groundwater Management Ordinance, which requires that the County either issue a permit
authorizing the Project, or issue an exemption. The County’s approval of either the permit or
the exemption to the permit constitutes a “project” which is likely to have a significant effect
on the environment, and is therefore subject to CEQA environmental review process.
73. The County, in addition to sanctioning the Project pursuant to the Desert
Groundwater Management Ordinance, must also issue building and construction permits and
other municipal approvals for the project.
74. Further, as the public agency tasked with issuing a permit or exemption pursuant
to the County Desert Groundwater Management Ordinance, the County was required to act as
lead agency under CEQA for the permit or exemption.
75. The County did not act as lead agency for the project, permitting instead SMWD
to act as lead agency.
76. The County had multiple opportunities to assert its role as lead agency for the
Project, including but not limited to the 2012 MOU it entered into with SMWD and Cadiz,
requiring the County to make a decision on the Project in the capacity of responsible agency.
The County could also have petitioned the Office of Planning and Research for a determination
that it was lead agency pursuant to CEQA Guidelines § 15053, but did not.
77. Failure to act as lead agency severely constrained the County’s ability to assert
control over the environmental review, mitigation, monitoring, and enforcement aspects of the
Project and its future oversight, and circumscribed the County’s discretion to change, approve
or disapprove the EIR and GMMMP.
78. The County’s failure to assert its role as lead agency for the Project is arbitrary,
capricious and not in accordance with CEQA statute and guidelines.
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79. SMWD is a local agency in southern Orange County whose purpose is to supply
water to customers within its service area. SMWD has entered into a contractual agreement to
receive Project water, and will have its project-related costs reimbursed by Cadiz if it approves
the Project. Pursuant to California law, SMWD’s board of directors is elected by residents of
service area.
80. As a water district with limited purpose, servicing an area hundreds of miles
from the Project site, with a board elected by residents its service area, SMWD does not
possess sufficient regional perspective, scope of expertise, or accountability to San Bernardino
County and its residents sufficient to fulfill its role as Lead Agency for the Project. Further,
the Project is proposed by a non-government entity, SMWD will neither construct nor operate
the Project, and SMWD is not responsible for additional approvals for the Project outside of
CEQA.
81. Approval of the Project with SMWD acting as lead agency for the Project was
arbitrary, capricious and not according to law.
Failure to Properly Include Responsible Agencies
(Against SMWD)
82. CEQA defines a responsible agency as “a public agency, other than the lead
agency which has responsibility for carrying out or approving a project.” (Cal. Public
Resources Code § 21069.)
83. The term “responsible agency” includes all public agencies other than the lead
agency which have discretionary approval over the project. (CEQA Guidelines § 15381.)
84. MWDSC is a regional State agency providing wholesale water to districts
throughout Southern California, including Respondent SMWD.
85. The lead agency has a duty to consult with all responsible agencies prior to
deciding whether to prepare an EIR. (Cal. Public Resources Code § 21080.3), and is required
to notify all responsible agencies of its intent to prepare an EIR (Cal. Public Resources Code §
21080.4). The responsible agency then must respond with information about "the scope and
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content of environmental information that is germane to" its responsibilities. The responsible
agency must provide comments on the DEIR, including detailed performance objectives for
mitigation measures, or refer the lead agency to appropriate, readily available guidelines or
reference documents. (Cal. Public Resources Code § 21081.6 (c ).)
86. MWDSC owns and operates water pipeline infrastructure necessary to convey
Project water to its intended recipients, and to deliver water to and from the Colorado River
Aqueduct. MWDSC must approve the conveyance of Project water before its infrastructure
can be used to deliver water to the listed Project recipients and before the Colorado River
Aqueduct can be used. Therefore, MWDSC is properly a responsible agency for the Project.
87. MWDSC was not included as a responsible agency for the project when the
DEIR was circulated, so it could not provide the information required of it as a responsible
agency. The scrivener’s change in the FEIR, including MWDSC as a responsible agency, did
not provide MWDSC with sufficient reviewing and critiquing authority befitting a responsible
agency tasked with approvals fundamental to the project’s operation. Further, SMWD did not
provide a comment period for the FEIR and approved the Project shortly after the FEIR was
issued, so that MWDSC not assert a role as responsible agency at that late stage. The failure
to include MWDSC in an early stage of the Project’s environmental review foreclosed
fulfillment of what would have been MWDSC’s duties as a responsible agency in the review
process, which are greater than those of an interested member of the public.
88. The alteration to the surface of the dry lakebeds may require a streambed
alteration permit to be issued by the California Department of Fish and Game (“CDFG”) (Cal.
Fish & Game Code § 1602). CDFG should also have been included as a responsible agency
for the project.
89. The addition of imported water to the aquifer during Phase II of the project and
the addition of Project water to State Water Project may require a permit for waste discharge
requirements and/or a water quality certification issued by the State Water Resources Control
Board or a regional Water Quality Control Board. (California Water Code §§ 13160 and
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13260.) The Water Board or one of its regional agencies should have been included as a
responsible agency for the project.
90. The addition of Project water to State Water Project facilities requires
authorization from the California Department of Water Resources (“DWR”). DWR should
have been named as a responsible agency for the project.
91. SMWD’s failure to properly include MWDSC, CDFG, SWRCB (or regional
board) and DWR as responsible agencies in time to provide a meaningful critique and
recommendations for the EIR and GMMMP was arbitrary, capricious and not in accordance
with law.
Failure to Provide an Adequate Description of the Project and the Affected Environment
(Against SMWD)
92. CEQA requires an accurate, stable and finite project description of the proposed
project; the project description must “embrace the whole of the action” and include a
description of the entire scope of the project. (CEQA Guidelines § 15124.)
93. The EIR for the Cadiz project fails to provide an accurate, stable and finite
definition of the Project and the affected environment, and to describe the true scope of the
project, including but not limited to the following areas:
Project Title
94. The Project has a misleading and deceptive title. The title of the Project includes
the terms “conservation” and “storage” but the project “conserves” water by exporting it for
consumptive use, and claims to “store” water on an undetermined future basis. The title of the
project is intentionally misleading and prejudicial to accurate public review.
Project Objectives
95. CEQA requires a statement of objectives sought by the proposed project.
(CEQA Guidelines § 15124(b) and (d).) A clearly written statement of objectives in turn
assists the lead agency in creating a range of alternatives to evaluate in the EIR. (CEQA
Guidelines § 15124(b).) The statement of objectives should include the underlying purpose of
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the project. (Id.)
96. The EIR fails to provide complete or accurate project objectives and does not
accurately describe the purpose of the Project. The EIR states that the purpose of the Project is
to “conserve” water, but “conserve” is commonly used to mean save water, not to export it for
consumptive use. The EIR’s use of “conservation” as a main project objective is misleading, is
unsupported by the evidence and is not in accordance with law.
97. The EIR fails to accurately describe the size of the Project’s export component.
The project EIR and NOD claim the project will extract an average of 50,000 acre-feet per
year. However, there is no contract or agreement that specifies the amount of extraction. The
contracts referred to in the MOU to deliver water demonstrate a minimum commitment to
deliver Project water, but do not describe a maximum threshold. Additional contracts for
export of water could cause the Project to export more water without any set limit. The EIR
also claims that the project could export at least 75,000 acre-feet per year, and previous
versions of the Project have estimated export potential at 150,000 acre-feet per year. Further, it
is likely that implementation of Phase II will provide additional exports of Project water and
result in an increase in export capacity beyond 50,000 acre-feet. The finding that the project
will export an average of 50,000 acre-feet per year is arbitrary, capricious not in accordance
with law and unsupported by the evidence.
98. The EIR fails to adequately assess the duration of the Project: there is no
guarantee or reason why the project will only last 50 years as the EIR claims. The project may
be extended, and the EIR states as much: that the duration of the project depends on fulfilling
the Project’s contractual commitments. Yet the EIR does not provide an analysis of impacts
for extending the project. Failure to do so renders the EIR’s analysis of long-term impacts
inadequate, and its conclusions regarding impacts unsupported by the evidence.
99. The MOU contains a provision to deliver 20% or 25,000 acre-feet water to San
Bernardino and 30,000 acre-feet to Inland Empire Utilities Agency. Yet Inland Empire
Utilities Agency is not listed as a project recipient of approval in the EIR or NOD. It is further
unclear from the EIR whether this water would be in addition to or part of the average 50,000
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acre-feet already estimated by the project for yearly export. Failure to include or properly
analyze this term in the EIR, describing delivery of many thousand acre-feet of water to San
Bernardino and Inland Empire Utilities Agency, renders the EIR’s project description arbitrary
and unsupported by the evidence.
Legal and Regulatory Framework
100. CEQA requires a statement of the current legal and regulatory framework in
which the proposed project will be developed.
101. The EIR inaccurately describes the current regulatory framework within which
the Cadiz project must be considered. The EIR does not adequately acknowledge the degree of
approval required by MWDSC for use of its pipe infrastructure to both deliver water to the
proposed recipients, and to import the water from the Colorado River or State Water Project.
Illegal Segmentation of Project
(Against SMWD)
102. Although both “recovery” and “storage” are included in the Project title, the EIR
segments the export and import components of the Project into two parts, or “phases,” with the
“recovery” component analyzed in detail in the EIR (“Phase I”) , and the “storage”
component’s review only occurring on a general “program” level (“Phase II”). The EIR and
GMMMP do not estimate the amount of water which would be imported, nor does it assess the
likely impacts to water supply and quality resulting from implementing this part of the project.
103. Even though the Project does not appear to have a firm commitment to store
water, it frequently uses the storage concept as justification for its actions in Phase I, such as
the lowering of the aquifer due to “temporary surplus,” which the MOU describes as the water
which may be exported despite overdraft in order to reverse the flow gradient and/or create
space to store imported water.
104. The Project EIR is not a programmatic EIR and does not contain sufficient
details regarding the storage component of the project. The segmentation of the project is not
in accordance with the law and violates CEQA.
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105. The EIR fails include and adequately assess the environmental impacts
associated with export of the water through the MWDSC conveyance infrastructure—an
essential element of the Project. Instead, the EIR improperly segments this portion of the
Project be reviewed at some later date. By approving an improperly segmented EIR, SMWD
failed to proceed in a manner required by law, committed a prejudicial abuse of discretion and
acted arbitrarily and capriciously with respect to its approval of the Project.
Failure to Adequately Describe the Project’s Impacts
(Against SMWD)
106. CEQA requires that an EIR disclose and analyze all possible significant
environmental impacts of a proposed project. (Pub. Resources Code § 21100(b)(1) and CEQA
Guidelines § 15126.) The significant impacts should be discussed with emphasis in proportion
to the severity and probability of occurrence. (CEQA Guidelines § 15143.)
107. The EIR failed to address or inadequately addressed impacts, including but not
limited to the deficiencies described in the section immediately above and those enumerated
below. As a result, SMWD failed to proceed in the manner required by law and abused its
discretion by failing to fully disclose and analyze the Project’s environmental impacts,
including but not limited to the following:
Water Impacts: Recharge and Evaporation / Inadequate Analysis of Hydrological Impacts
108. During the comment period for the DEIR, the Petitioners, together with other
entities, including the National Park Service, explained in detail period that the hydrologic
studies relied on by SMWD are defective, in error, and significantly overestimate the amount
of recharge. The EIR inadequately assesses impacts to water recharge and evaporation for the
project. The EIR fails to adequately justify its conclusions when multiple previous studies of
the Project and its environment, including those by the USGS, the nation’s preeminent natural
science agency, estimated water recharge at a small fraction of the rate estimated by Cadiz’s
consultants. In fact, the EIR and supporting studies estimate recharge at a rate three to sixteen
times that provided by government and independent studies. The EIR and supporting studies
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appear to improperly use and rely upon computer models without adequate supporting field
data to support its conclusions, and improperly use groundwater flow models to estimate a
change in evaporation. The findings regarding recharge and evaporation are arbitrary,
capricious and unsupported by the evidence, and are directly contradicted by numerous studies
cited by multiple commenters.
109. The EIR fails to demonstrate that aquifer drawdown or overdraft (as defined by
common use, and not by the MOU) will not occur. The EIR fails to adequately substantiate its
claim that there would be no adverse impacts and no overdraft of the aquifer, and fail to refute
claims that the Project will cause a long-term depression in the aquifer, despite the fact that for
50 years or more the Project will deplete between 18,000 (according to SMWD’s own experts)
and 43,000 acre-feet per year of groundwater more than is recharged—and that assumes the
Project only pumps 50,000 acre-feet per year, when it is able to pump much more.
110. The EIR fails to adequately support its conclusion that export of the water will
eliminate or sharply curtail evaporation. The EIR proceeds from the assumption that extraction
of water below the dry lake beds will eliminate evaporation, but this conclusion is not
supported by the weight of the evidence. The EIR also does not adequately address whether
the evaporation rates will change if and when the aquifer is recharged with stored water. The
finding that exporting Project water will eliminate evaporation is arbitrary, capricious and
unsupported by the evidence.
111. The EIR assumes that evaporated water constitutes “waste” that is being
“conserved” by exporting Project water. However, water evaporating through the ground into
the natural environment is not wasted because it benefits soil structure, native plants, insects
and wildlife, and prevents soil erosion and negative air impacts. The presumption that
evaporated water in areas affected by the Project is “waste” is arbitrary and capricious and not
in accordance with law.
112. The EIR fails to adequately support its conclusion that the aquifer will be
sustainable or eventually recover from long-term Project water extraction operations. The
EIR’s analysis of depletion and recovery in the aquifer is arbitrary, capricious and not
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supported by the weight of the evidence.
113. The EIR fails to adequately support its conclusion that the Project will not affect
area springs. The finding that springs will not be impacted is based on a conclusion that the
target aquifer is not hydrologically connected to the springs. However, at least some springs
within the Mojave National Preserve do appear to be hydrologically connected. Without
detailed studies of the springs’ hydrologic connection, the EIR’s assumption of no harm to
springs is arbitrary, capricious and unsupported by the evidence.
114. Despite public requests for the information, SWMD and the EIR failed to
provide to the public all data and necessary information to assess and verify the models that
Cadiz’s experts used. As a result, members of the public and decision-makers were unable to
fully assess the validity of expert’s conclusions and thus the EIR’s conclusions, rendering
effective review of the EIR impossible. This failure to provide sufficient information to judge
the expert’s conclusions is a violation of CEQA’s public informational requirements.
Water Impacts: Mitigation and Monitoring
115. CEQA requires SMWD to adopt feasible mitigation measures in order to
substantially lessen or avoid the otherwise significant adverse environmental impacts of
proposed projects. (Cal. Pub. Resources Code § 21002.) SMWD is required pursuant to
CEQA to consider mitigation measures and alternatives to the Project, to adopt all feasible
mitigation measures and/or alternatives, to determine that proposed mitigation measures will or
will not be effective in avoiding or substantially lessening the Project’s significant
environmental impacts, and to make an adequate statement of overriding considerations for
those significant environmental impacts deemed unavoidable. (Cal. Pub. Resources Code §§
21002(b) and 21081.)
116. The EIR fails to properly consider reasonable mitigation measures for the
proposed project, including but not limited to: mitigation measures to prevent overdraft;
mitigation measures included for the prior Cadiz project(s), including a guarantee of replacing
all exported water; establishment and adequate monitoring of enough “early warning” wells
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(particularly when a limited number of such wells, though without adequate monitoring, have
been added to the GMMMP); an adequate monitoring program; an adequate enforcement
process; and mitigation measures that would reduce growth-inducing impacts to the Project
recipients.
117. The proposed mitigation measures adopted for the Project are inadequate to
address the potential significant impacts of the Project on water resources, including but not
limited to long-term aquifer drawdown. There is no substantial evidence the proposed
mitigation measures are adequate to prevent long-term harm to the affected aquifers.
118. The EIR improperly deferred formulation of specific mitigation strategies and
thresholds for action until after Project approval.
119. The EIR improperly relies on an incomplete and inadequate Groundwater
Management, Monitoring and Mitigation Plan (GMMMP) for mitigation and monitoring of the
Project. The GMMMP is not approved by the County and does not contain many important
details contained in the MOU, and yet the EIR defers proper analysis of the mitigation and
monitoring to this inadequate GMMMP. The County must still supply key variables for the
Project that are missing from the GMMMP and EIR, including the identification of a “floor”
groundwater level. Without determining the “floor” there can be no finding regarding
overdraft or safe yield. The missing variables from the EIR and GMMMP render effective
monitoring of the project virtually impossible.
120. The GMMMP was updated between the DEIR and FEIR and received new and
revised measures, which SMWD claims improves upon those included in the DEIR and draft
GMMMP. Petitioners strongly dispute the efficacy of these additions towards effective
mitigation and monitoring of the Project. In addition, these revisions would not change the
terms of the May, 2012 MOU signed by SMWD, the County and Cadiz regarding project
approval, monitoring and oversight.
121. In the FEIR, SMWD claimed it made major changes to the GMMMP. If true,
these changes merited detailed review by responsible agencies and the public. However,
SMWD gave the public only a few weeks to review the changes before approving the Project,
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not enough time for any concerned government agency or member of the public, including
Petitioners, to digest and suggest appropriate changes to the revised GMMMP. These agencies
include the County of San Bernardino, National Parks Service and MWDSC, whose interests
will be particularly impacted by the Project. The changes from the GMMMP in the DEIR to
the FEIR merited public re-circulation and the failure to do so violated CEQA’s requirement to
re-notice and re-circulate and EIR with substantial new information, and violates CEQA’s
public review provisions by attempting to pass substantial new measures without adequate
public review.
122. The EIR, GMMMP and MOU employ the concept of “temporary surplus” to
justify Project pumping beyond the amount where recharge is greater than extraction, which is
called “overdraft.” However, the Project re-defines “overdraft” to exist only when there is no
“temporary surplus.” “Temporary surplus” continues to shift meanings for the Project; before
it was justified to create space to import water from the Colorado River aqueduct or another
source, creating a “surplus” of water that must be exported in order to make way for the
imported water. In the current Project, the EIR claims that a “temporary surplus” is created by
the need to reverse the gradient or flow. However, the EIR and GMMMP state that the storage
portion of the project is now speculative, and the EIR and GMMMP does not adequately
estimate how much water would be required to be removed to reverse the gradient or flow.
Thus the determination of what constitutes “temporary surplus” seems to be at the whim of the
Project operator and a carte blanche to create harmful overdraft conditions. The EIR may not
justify a “temporary surplus” based on the expectation of water importation that is speculative
at best. The use of “temporary surplus” to drain the aquifer is arbitrary, capricious and
unsupported by the evidence.
123. The GMMMP and MOU re-define “overdraft” as a ten-year average of
extraction, so that one must wait an entire decade before determining Project impacts on water
level. The ten-year wait for monitoring renders this aspect of the project ineffective and
threatens the health of the aquifer, failing CEQA’s mitigation requirement. The ten year delay
undermines the ability to monitor for “overdraft” conditions and is inadequately reviewed in
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the EIR.
124. The GMMMP and MOU re-define “safe yield” to mean not causing “overdraft”
or endangering “aquifer health.” Because of the way these different terms are defined, a “safe
yield” would be found even with a precipitous drop in aquifer levels, as such a drop would not
be considered “overdraft” when there is a finding of “temporary surplus,” and “aquifer health”
is not defined to include drawdown of the aquifer. It is further impossible to find whether there
is a “safe yield” from the Project when the County has supplied neither the groundwater
“floor” level nor the acceptable “rate of decline.” The convoluted definitions of “safe yield”
and associated terms and lack of key variables renders a “safe yield” determination in the
GMMMP and thus in the EIR arbitrary, capricious and unsupported by the evidence.
125. The GMMMP and MOU define “aquifer health” but exclude the water level
from the definition. Aquifer health is necessarily based on water level, among other factors.
Failure to include the water level in the “aquifer health” means that monitoring for “aquifer
health” does not return a negative finding when aquifer drawdown occurs, making the
monitoring ineffective.
126. The MOU defines “undesirable results” to include decline below a “floor” and
“rate of decline” to be set by the County. However, the County has not set this floor or rate of
decline in the EIR or GMMMP. Without first establishing the “floor” or “rate of decline” the
finding of “undesirable results” cannot occur, making it impossible for the lowering of the
water level to trigger “undesirable results.”
127. The relationship between the MOU and GMMMP’s definitions of “aquifer
health,” “safe yield,” “overdraft” and “undesirable results” is poorly described in the EIR,
making the document prejudicially defective in describing and analyzing the Project’s
monitoring program.
128. The MOU requires monitoring and reporting to go through numerous stages of
intermediate interpretation and multiple decision levels, which delay reporting and make
monitoring ineffective. Through the process defined in the MOU, the monitoring review
process is excessively controlled by Project participants and Cadiz, depriving adequate
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monitoring, review and enforcement opportunities to the County and concerned individuals.
129. The MOU requires disputes over aquifer health or other project aspects to be
subjected to binding arbitration. This provision deprives the County or other interested
member of the public an effective means of challenging aquifer drawdown or other impacts, as
a full review by an Article III court is precluded by the MOU. Arbitration is further limited by
first requiring findings of “overdraft” or “undesirable results,” which are either ambiguous or
re-defined by the MOU to inaccurately reflect the level of the aquifer. This makes it still more
difficult to seek a judicial remedy to aquifer drawdown, and also makes monitoring of the
project unenforceable. Requiring arbitration subject to the convoluted definitions of the MOU,
is both contrary to CEQA’s mitigation requirements and is inadequately described in the EIR.
130. The use of the above terms as defined in the MOU renders the monitoring and
mitigation of the Project ineffective and in violation of CEQA’s requirements to mitigate to a
less than significant extent and to effectively monitor for harm to the environment.
Water Impacts: Water Quality
131. The EIR fails to adequately discuss, analyze and the impact related having to
treat Project water extracted from the aquifer to reduce the levels of hexavalent chromium 6.
Data supporting the EIR and comments from MWDSC indicate that the levels of hexavalent
chromium 6 in Project water are substantially higher than current standards, as signaled by the
adoption of Public Health Goal of 0.02 ppb—the level of the element that does not pose a
significant health risk in drinking water. It is reasonably foreseeable that SMWD will be
required to treat Project water to significantly reduce the levels of hexavalent chromium 6
before Project water can be introduced into the CRA and the MWDSC system. The EIR fails to
analyze the environmental impacts associated with the need to build treatment facilities and the
removal of hexavalent chromium 6, instead deferring such analyses until some later date.
132. The EIR fails to adequately assess the impacts to water quality from storing
imported water from the Colorado River or other source in the Project aquifers. As a result of
improper segmentation of the Project, the EIR fails to assess the environmental impacts to
water quality, even though the storage component is included in the Project’s title and
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description. The EIR fails to adequately assess or attempt to mitigate the degradation of water
quality and potential violation of the state antidegradation policy. The failure to address water
quality impacts to the aquifer is arbitrary, capricious and not in accordance with law.
133. The EIR project fails to adequately assess impacts to water quality on the water
that would be transported through common infrastructure with Project water. Infrastructure
including the State Water Project and MWDSC pipelines will be required to deliver Project
water, but the EIR fails to adequately assess the addition of Project water to those supplies will
degrade the quality of the combined result. Failure to assess the impacts on water quality
through commingling sources during transport is arbitrary, capricious and not in accordance
with law.
Air Impacts
134. The EIR improperly assumes that dust and airborne soil will not increase due to
loss of soil moisture. However, if the soil is dried out by the Project though eliminating
evaporation, this will cause air impacts from increases in dust and airborne soil.
135. The EIR failed to provide substantial evidence that the amount of extraction
beyond recharge rates will not result in the creation of significant dust and related air quality
issues.
136. The EIR and GMMMP likewise failed to establish appropriate mitigation
measures and thresholds for action for air impacts.
137. The failure to adequately address the impacts to air quality is arbitrary,
capricious and unsupported by the evidence.
Biological Impacts
138. The EIR impermissibly underestimates the impacts of the Cadiz project on plants
and wildlife and their respective habitats, including but not limited to rare plants including
desert phreatophytes, the Desert Tortoise, the Mojave Fringe-Toed Lizard, the Desert Kit Fox ,
Badger, Burrowing Owl, Golden Eagle, Desert Bighorn Sheep, and cryptobiotic soils and
desert pavements. The EIR lacks adequate study of these populations and their dependence on
the current state of habitat surrounding the Project.
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139. The EIR fails to adequately analyze the impacts to sensitive wildlife from
potential loss of springs and loss of soil moisture due to (purportedly) lower evaporation rates.
140. The EIR fails to adequately assess the Project’s impacts on wildlife connectivity,
wildlife corridors and linkages.
141. The EIR fails to adequately analyze impacts to water, scenic resources and
biological resources within the Mojave National Preserve.
142. The EIR fails to include appropriate mitigation and monitoring plans for affected
plants and wildlife, and impermissibly defers preparation and analysis of such plans until an
undetermined future date. The EIR also fails to include appropriate translocation plans for the
Mojave Fringe-Toed lizard, an avian and bat protection plan, desert kit fox and badger “passive
relocation” plans, burrowing owl relocation and monitoring plan, and raven reduction plan.
143. The EIR’s failure to adequately address and mitigate impacts to plants and
wildlife, and to include the appropriate mitigation, monitoring and translocation plans, renders
the Project EIR’s evaluation of wildlife and biological resources arbitrary, capricious and
unsupported by the evidence.
Climate Change
144. CEQA requires consideration of increases or decreases of greenhouse gases and
inducement of man-made changes to the earth’s atmosphere (“climate change”) due to
implementation of a proposed project. (CEQA Guidelines § 15064.4).
145. The Project fails to adequately account for climate change impacts, including
climate change-induced changes to rates of evaporation and recharge to the aquifer, and
impacts to the desert environment from a combination of climate change and the impacts of the
proposed project.
Growth-Inducing Impacts
146. CEQA requires that an EIR provide full analysis of ways in which a proposed
project could foster economic or population growth, or the construction of additional housing,
either directly or indirectly, in the surrounding environment. (Pub. Resources Code §
21100(b)(5) and CEQA Guidelines §§ 15126 and 15126.2.) Physical changes to the
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environment caused by economic and social impacts should also be considered as a significant
effect on the environment. (CEQA Guidelines 15164(e).)
147. The EIR fails to adequately assess the growth-inducing impacts caused by
enactment of the Project. The EIR mischaracterizes and underestimates the Project’s growth-
inducing impacts through providing a flawed analysis of the water use, assuming that because
the Project water may substitute for another supply that the water will not be growth-inducing,
even though the net amount of water available region-wide will increase by the amount of the
Project supply.
148. The EIR impermissibly defers full assessment of the Project’s growth
consequences to future assessments of local decision-makers.
149. The EIR fails to fully assess the growth-related impacts of the Project as required
by CEQA.
Cumulative and Indirect Impacts
150. CEQA requires that an EIR for a proposed project consider reasonably
foreseeable cumulative impacts from a project. (Pub. Resources Code §§ 21100 and CEQA
Guidelines § 15130.) The EIR fails to provide an adequate cumulative impacts assessment for
the Cadiz project.
151. The EIR does not adequately assess the cumulative impacts on the local area of
the pumping from the project.
152. The EIR does not adequately assess the regional impacts of delivering Project
water to the respective recipients of the water,
153. The EIR does not assess the reasonably foreseeable cumulative impacts
associated with combining Phase I impacts with storage of imported water (Phase 2 of the
Project), deferring unlawfully analysis to the future.
Alternatives
(Against SMWD)
Feasible Alternatives
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154. CEQA requires an EIR to examine a range of reasonable alternatives that would
feasibly obtain most of the project objectives, but avoid or substantially lessen any significant
adverse effects of the project. (CEQA Guidelines § 15126.6.)
155. SMWD erroneously rejects feasible alternatives as infeasible. To the extent that
a stated primary purpose of the project is to conserve water, alternatives to the proposed Project
would conserve water more efficiently, and with far fewer environmental impacts than the
approved alternative were rejected as infeasible. The EIR fails to adequately explain why the
chosen alternative is superior for meeting the conservation purpose of the Project. In addition,
the EIR provides no substantial evidence to support its exclusion of feasible alternatives.
156. The EIR failed to provide an alternative to the Project to provide users with a
reliable alternative source of water. There are many other alternatives to pumping at least
50,000 acre-feet per year from the aquifer for a purported “conservation” of wasted water.
157. Among several reasons that SMWD gave for rejecting reasonable alternatives as
infeasible was that the alternative would require an easement from the BLM. Contrary to
SMWD’s assertions, the chosen Project also requires approval from the BLM to utilize the
Railroad Right of Way. SMWD’s rationale for rejecting such alternatives requiring BLM
approval is arbitrary, and the inference that the approved project is not subject to BLM
approval is contrary to law.
Reasonable Range of Alternatives
158. CEQA requires that an EIR include a reasonable range of alternatives for a
proposed project that will foster informed decision-making and public participation. (CEQA
Guidelines § 15126.6.)
159. The EIR does not adequately consider Project alternatives that would achieve
conservation of groundwater at the same or greater degree than the chosen alternative.
160. The EIR does not sufficiently justify choosing the Project alternative through its
statement of overriding considerations.
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161. The EIR provides a limited and incomplete range of feasible alternatives to the
proposed project, including at least one alternative that inappropriately includes significant
portions of the proposed project.
162. The EIR improperly concludes that the alternatives described in the EIR have
similar impacts and outcomes as the proposed project, and does not provide alternatives that
are clearly distinguishable from the “no project” alternative and the proposed project.
163. The EIR’s project alternatives were impermissibly narrowed, so that only the
Project could qualify as a legitimate alternative. By making “saving” or “conserving” water
that the EIR incorrectly characterizes as being “wasted” a fundamental objective of the Project,
SMWD unlawfully limited the scope of the project and the reasonable alternatives that could
otherwise meet most of the Project’s key objectives. The failure of the EIR to analyze
reasonable alternatives is an error of law.
164. The EIR fails to analyze an alternative that avoids impacts to the region’s springs
and biological resources.
Inadequate Response to Comments
(Against SMWD)
165. SMWD failed to respond adequately to comments submitted by Petitioners, other
members of the public, and other agencies. Instead, the responses given to numerous
comments are conclusory, evasive, confusing, or otherwise non-responsive, contrary to the
requirements of CEQA. In particular, the EIR failed to adequately address comments that the
models used by Cadiz’ experts were likely to be overestimating recharge and evaporation rates
for the Project.
166. In addition, SMWD failed to provide an adequate rationale for rejecting
alternatives to the Project proposed by Petitioners and other commenting agencies and persons.
By failing to provide adequate responses to public comments and proposed alternatives,
Respondents failed to proceed in the manner required by law.
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Failure to Include Terms of MOU in EIR and to Recirculate EIR
(Against SMWD)
167. CEQA requires that an EIR must be re-circulated for additional public and
agency comment when significant new information is added after the EIR’s initial circulation.
168. SMWD failed to re-circulate the EIR despite the availability of significant new
information contained in the Memorandum of Understanding (MOU) entered into between
Cadiz, SMWD and the County after the DEIR was circulated and prior to certification
regarding the Project’s environmental consequences.
169. The failure to analyze the terms included in the MOU constitute a failure to
adequately review the Project, and to re-circulate a new EIR as required by CEQA.
CEQA Findings Not Supported By Substantial Evidence
(Against SMWD)
170. CEQA requires that an agency’s findings for approval of a project be supported
by substantial evidence in the administrative record and requires that an agency provide an
explanation of how the record evidence supports the conclusions that it has reached. (CEQA
Guidelines § 15091)
171. SWMD violated CEQA and failed to proceed in the manner required by law by
adopting findings that are inadequate as a matter of law in that they are not supported by
substantial evidence in the record, including, but not limited to:
172. The determination that alternatives to the Project that would avoid or lessen the
significant impacts are infeasible or otherwise not reasonable;
173. The determination that various mitigation measures that would avoid or lessen
the significant impacts of the Project are infeasible;
174. No substantial evidence supports SMWD’s findings adopted pursuant to CEQA,
including the findings that the project will produce less than significant environmental impacts,
even with the GMMMP implemented, and that water supply, water quality, climate change, air
quality, and biological resources have been mitigated to less than significant levels.
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Statement of Overriding Considerations Not Supported By Substantial Evidence
(Against SMWD)
175. Where no feasible mitigation measures or alternatives are available to avoid or
reduce a project’s significant environmental effects, CEQA allows an agency approving a
project to adopt a Statement of Overriding Considerations that describes how specific
overriding economic, legal, social, technological, or other benefits outweigh the significant
environmental effects.
176. In approving the Project and certifying the EIR, SMWD concluded that the
Project would result in significant unavoidable impacts. SMWD adopted a Statement of
Overriding Considerations, including findings that specific considerations make infeasible the
mitigation measures or alternatives identified in the EIR for the Project’s unavoidable
significant impacts and that economic, social, and other factors justify approval of the Project
despite these unavoidable significant impacts.
177. The Statement of Overriding Considerations inaccurately estimates impacts to
water supply, water quality, air quality and biological impacts. SMWD’s adoption of a
Statement of Overriding Considerations that purportedly justifies the Project’s significant
adverse impacts on the environment is not supported by substantial evidence and represents a
failure to proceed in the manner required by law. Similarly, the finding that no feasible
alternatives or additional mitigation measures exist to eliminate or reduce the remaining
significant effects is not supported by substantial evidence.
178. As a result of the foregoing defects, SMWD prejudicially abused its discretion by
adopting findings that do not comply with CEQA’s requirements and approving the Project in
reliance thereon. Accordingly, both SMWD’s certification of the EIR and SMWD’s approval
of the Project must be set aside.
PRAYER FOR RELIEF
WHEREFORE, the Petitioners pray for relief as follows:
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1. For alternative and peremptory writs of mandate, commanding SMWD:
(A) to vacate and set aside approvals of the Project;
(B) to vacate and set aside certification of the Final EIR for the Project;
(C) to suspend any and all activity pursuant to Respondents' approvals of the Project
that could result in an adverse change or alteration to the physical environment until all
requirements of CEQA and all other applicable state and local laws, policies, ordinances, and
regulations are complied with, as directed by this Court pursuant to Cal. Public Resources
Code section 21168.9;
(D) For a stay, temporary restraining order, preliminary injunction, and permanent
injunction prohibiting any actions by Respondents and Real Parties in Interest pursuant to
SMWD' approval of the Project and certification ofthe EIR for the Project until full
compliance is attained with all requirements of CEQ A and all other applicable state and local
laws, policies, ordinances, and regulations;
(E) For a declaration that SMWD's actions certifying the EIR and approving the
Project violated CEQA and the CEQA Guidelines, and that the certification and approvals are
invalid and of no force or effect;
(F) For a declaration that the County of San Bernardino is the proper lead agency for
the Project under CEQA;
5. For costs of the suit;
6. For attorney's fees pursuant to the Cal. Code of Civil Procedure § 1021.5; and
7. For such other and further relief as the Court deems just and proper.
DATED: August 30, 2012 Adam Keats D. Adam Lazar CENTER FOR BIOLOGICAL DIVERSITY
By: D~L\bs Attorney for Petitioners
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VERIFICATION
I have read the foregoing Petition for Writ of Mandate and know its contents.
I am the California Desert Field Representative for the National Parks Conservation
Association, which is a party to this action, and am authorized to make this verification for and
on its behalf, and I make this verification for that reason. I have read the foregoing document
and know its contents. The matters stated in it are true of my own knowledge except as to
those matters that are stated on information and belief, and as to those matters I believe them to
be true.
Executedon fh' 1v5}- Z<t ,2012, at -:fo5\..vt!'oo. \,~ , California.
I declare under penalty ofperjury under the laws of the State of California that the foregoing is
true and correct.
kcb Jk;w Seth Shteir National Parks Conservation Association
Verification
Exhibit
A
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1 PROOF OF SERVICE
2 STATE OF CALIFORNIA, COUNTY OF SAN FRANCISCO
3 I am employed in the County of San Francisco, California as an active member ofthe
4 Bar of that State. I am over the age of 18 and not a party to the foregoing action. My business
address is 351 California St., Suite 600, San Francisco, CA. 94104. 6
On August 28, 2012 I served a true and correct copy of NOTICE OF 7
COMMENCEMENT OF CEQA ACTION on the Respondents to this action by placing a true 8
and correct copy thereof in a sealed envelope, addressed as shown below: 9
Santa Margarita Water District 26111 Antonio Parkway
11 Rancho Santa Margarita, CA 92688 Attn: Dan Ferons, General Manager
12 San Bernardino County
13 385 North Arrowhead Avenue 14 San Bernardino, CA 92415
Attn: Laura H. Welch, Clerk of the Board
16 [X] BY OVERNIGHT DELIVERY SERVICE via Federal Express to the offices of the
17 addressee(s). In accordance with Code of Civil Procedure § 1013(c), I am
18 readily familiar with my organization's practice of collection and processing correspondence
19 for mailing with Express Mail. Under that practice the correspondence would be
deposited at the Federal Express office on that same day in the ordinary course ofbusiness
21 with postage thereon fully prepaid at San Francisco, California. Such envelope was sealed
22 and delivered to the Federal Express office for collection and mailing following ordinary
23 business practices addressed to the address above.
24 Executed on August 28,2012 in San Francisco, California.
I declare under penalty of perjury under the law of California that the
26 foregoing is true and correct.
27
D. Adam r
Notice of Commencement of CEQ A Action Page 2
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Exhibit
B
Notice of Election to Prepare the Administrative Record
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D. Adam Lazar (SBN 237485) Adam Keats (SBN 191157) CENTER FOR BIOLOGICAL DIVERSITY 351 California St., Suite 600 San Francisco, California 94104 Telephone: 415-436-9682 Facsimile: 415-436-9683 [email protected] [email protected] Michael Robinson-Dorn (SBN 159507) U.C. IRVINE SCHOOL OF LAW 401 E. Peltason Dr., Suite 4500-B Irvine, California 92697 Telephone: 949-824-1043 [email protected] Attorneys for Petitioners
SUPERIOR COURT OF THE STATE OF CALIFORNIA
COUNTY OF SAN BERNARDINO
CENTER FOR BIOLOGICAL DIVERSITY, NATIONAL PARKS CONSERVATION ASSOCIATION, SAN BERNARDINO VALLEY AUDUBON SOCIETY AND SIERRA CLUB, SAN GORGONIO CHAPTER Petitioners / Plaintiffs, vs. COUNTY OF SAN BERNARDINO, BOARD OF SUPERVISORS OF COUNTY OF SAN BERNARDINO, SANTA MARGARITA WATER DISTRICT, AND SANTA MARGARITA WATER DISTRICT BOARD OF DIRECTORS,
Respondents;
CADIZ, INC., ARIZONA AND CALIFORNIA RAILWAY CO., CALIFORNIA WATER SERVICES COMPANY, FENNER VALLEY MUTUAL WATER COMPANY, GOLDEN STATE WATER COMPANY, JURUPA COMMUNITY SERVICES DISTRICT, SUBURBAN WATER SYSTEMS, THREE VALLEYS MUNICIPAL WATER DISTRICT AND DOES 1-40. Real Parties in Interest.
))))))))))))))))))))))))))))
Case No. NOTICE OF ELECTION TO PREPARE ADMINISTRATIVE RECORD
(Cal. Pub. Res. Code § 21167.6)
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1 NOTICE OF ELECTION TO PREPARE RECORD
2 Petitioners Center for Biological Diversity, National Parks Conservation Association,
3 San Bernardino Valley Audubon Society, and Sierra Club, San Gorgonio Chapter, elect to
4 prepare the record ofproceedings in the above-captioned matter, or alternatively, to pursue an
alternative method of record preparation pursuant to Public Resources Code Section
6 21167.6(b)(2).
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8 DATED: August 30, 2012 By:
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D. Adam Lazar 11
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Center for Biological Diversity
Attorney for Petitioners
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-1Notice of Election to Prepare Administrative Record